Creating a Cloud user from Admin panel
While creating a cloud user you can assign that specific cloud user some resources and based on those resources it can create multiple VMs.
Creating a VM from Enduser (Cloud) panel
Once you've created a Cloud user from admin panel , your cloud user can login to its panel and start creating VMs with respect to the resources assigned to it.
Link to access Cloud panel :
http://server-ip:4082 (Non-SSL)
https://domain-name.com:4083 (SSL)